"it's unclear what the lawmakers, road designers, and police intend"
In many cases, there's a gap between the original intention and the current need.Many speed limits and policies were established in an era of fewer cars, but also much less capable cars with fewer safety features - many speed limits were established before the adoption of ABS, stability control and airbags, and more recent innovations in lane-keeping and adaptive cruise control.
Modern cars may be capable of travelling at greater speeds with greater safety, but there's a more recent recognition of the increase in emissions pollution from increased speed. Speed-limits typically remain grandfathered in at their original value (which may have been set 30, 40, 50 years ago), regardless of the change in context.
Then there are some pecularities such as the UK default of 60mph for a single-track road, but if you were to try that in many rural locations (think Cornwall, Scotland, Wales) you would likely find yourself upside-down in a ditch.
This post highlights the absurdity of some of the limits!
https://www.reddit.com/r/CasualUK/comments/1dng5z9/genuinely...
The UK NPCC (National Police Chief's Council) have a published policy where enforcement effectively starts at 10% +2mph over the speed-limit (whilst allowing officers to use individual discretion if they feel there are aggravating factors).
https://library.college.police.uk/docs/NPCC/Speed-enforcemen... [PDF]